State Council [2025] Document No. 11
To the people’s governments of all provinces, autonomous regions, and province-level municipalities, and all ministries and commissions of the State Council and their respective agencies:
The following opinions are hereby put forward in order to deeply implement the “Artificial intelligence+” initiative, promote the broad and deep integration of AI across all industries and areas of the economy and society, reshape humanity’s paradigms of production and living, drive revolutionary leaps for productive forces and profound transformations in the relations of production, and accelerate the formation of a new pattern of smart economy and smart society characterized by human-computer coordination, cross-sector integration, and co-creation and sharing.
I. Overall Requirements
Guided by Xi Jinping Thought on Socialism with Chinese Characteristics for a New Era, fully and accurately implementing the new concept of development, adhering to people-centered development thinking, and fully exploiting China’s advantages of abundant data resources, a complete industrial system, and extensive application scenarios, we will strengthen forward-looking planning, systematic deployment, sector-specific policy implementation, openness and sharing, and security and controllability. Focusing on the key fields of science and technology (S&T), industry, consumption, people’s livelihoods , governance, and global cooperation, we will thoroughly implement the “AI+” initiative. This will bring forth an array of new infrastructure, new technological systems, new industrial ecosystems, and new job openings, and accelerate the incubation of new quality productive forces, enabling all people to share in the benefits of AI development, and better serving the building of Chinese-style modernization.
By 2027, we will take the lead in achieving broad and deep integration of AI with six key fields, the penetration rate of new generation smart terminal devices and intelligent agents will exceed 70%, the core industries of the intelligent economy will be growing rapidly, the role of AI in public governance will be significantly enhanced, and the open cooperation system for AI will have been continuously improved. By 2030, China’s AI will be comprehensively empowering high-quality development, the adoption rate of new generation smart terminal devices and intelligent agents will exceed 90%, and the intelligent economy will have become a major growth pole in China’s economic development, promoting technological inclusion and the sharing of achievements. By 2035, China will have fully entered the new intelligent economy and smart society development stage, providing strong support for basically realizing socialist modernization.
II.Accelerating Implementation of Key Initiatives
1. “AI+” Science and Technology
(1) Accelerate the scientific discovery process. Accelerate the exploration of new AI-driven scientific research paradigms to speed up the “from zero to one” process of major scientific discoveries. Accelerate the development and application of large-scale scientific models, promote the intelligentization-based upgrading of basic research platforms and major S&T infrastructure, and build high-quality open and shared scientific datasets, so as to improve the processing of complex cross-modal scientific data. Strengthen the interdisciplinary pulling and driving force of AI to promote multidisciplinary integrated development.
(2) Drive research and development (R&D) model innovation and efficiency improvement. Promote the integrated and coordinated development of AI-driven technology R&D, engineering implementation, and product launches, and speed up “from 1 to N” technology execution and iterative breakthroughs, thereby encouraging the efficient conversion of innovative achievements into practical applications. Support the extension and application of intelligentized R&D tools and platforms, and strengthen collaborative technology innovation between AI and biomanufacturing, quantum technology, sixth-generation mobile communications (6G), and other fields, with new scientific research accomplishments supporting launching of scenario-based applications, and demand for new applications eliciting S&T innovation breakthroughs.
(3)Innovate research methods in philosophy and social sciences. Promote a shift in research approaches toward human-computer coordination, explore establishing new organizational forms for philosophical and social science research adapted to the AI era, and expand research perspectives and observational horizons. Conduct in-depth research on AI’s profound impacts and mechanisms of action on human cognitive judgments and ethical norms, and explore development of a theoretical system of “AI for good” , to encourage technology that better benefits humanity.
2. “AI+” Industry Development
(1) Incubate new AI-native industry models and formats. Encourage qualified enterprises to integrate AI into their strategic planning, organizational structures, and business processes, and promote the intelligentization-based development of all industry factors of production, thereby facilitating the renovation and upgrading of traditional industries and opening up new tracks for the development of strategic emerging industries and future industries. Vigorously develop AI-native technologies, products, and service systems, accelerate the incubation of a host of AI-native enterprises whose underlying architectures and operational logic are based on AI, and explore entirely new commercial models, giving rise new AI-native industry formats.
(2) Advance the development of intelligentisation across all industrial factors of production. Promote intelligent linkage across all industrial factors of production, and accelerate the practical application of AI throughout all phases, including design, pilot testing, production, service, and operation. Focus on enhancing the AI literacy and skills of all personnel, and push all industries to increase the formation of reusable expert knowledge. Accelerate innovation breakthroughs in industrial software and vigorously develop smart manufacturing equipment. Advance the intelligent coordination of industry supply chains, and strengthen adaptive supply-demand matching. Promote AI-driven production process optimization methods. Deepen the application of integration of AI and the industrial internet, and enhance the intelligent perception, decision-making, and execution capabilities of industrial systems.
(3) Accelerate the digitalized and intelligentized transformation and upgrading of agriculture. Accelerate AI-driven breeding system innovation and support intelligence applications in crop cultivation, animal husbandry, and other agricultural sectors. Vigorously develop intelligent equipment such as smart agricultural machinery, agricultural unmanned aerial vehicles (UAVs), and agricultural robots, enhance the intelligent perception, decision-making, control, and operational capabilities of agricultural production and processing tools, and strengthen platform- based and intelligentized management of agricultural machinery and tools. Strengthen AI applications in agricultural production management and risk prevention, helping farmers boost their operational capabilities and standards.
(4) Innovate new models of service industry development. Accelerate the evolution of services from digitally empowered internet services to new intelligence- driven service models, expand the scope of operations, and promote the intelligentization- and innovation-oriented development of modern services. Explore new models combining unmanned and human-provided services. Promote the widespread application of new generation smart terminal devices and intelligent agents in sectors such as software, information, finance, business, law, transportation, logistics, and trade.
3. “AI+” Consumption Quality Improvement
(1) Expand new service consumption scenarios. Incubate a broader range of intelligent service industry formats with richer content, accelerate the development of AI-native applications of the efficiency enhancement, companionship, etc. types, and support the opening up of new service entry points such as intelligent assistants. Strengthen the construction of intelligent consumption infrastructure, raise the quality of services for daily life, such as entertainment, e-commerce, housekeeping, real estate, transportation, elder care, and childcare, and expand new service consumption scenarios such as experiential consumption, personalized consumption, and cognitive and emotional consumption.
(2) Incubate new business formats for product consumption. Promote the “intelligent Internet of Everything” for smart terminal devices, incubate ecosystems of intelligent products, vigorously develop new generation smart terminal devices such as intelligent connected vehicles, AI-powered smartphones and computers, intelligent robots, smart home devices, and smart wearables, and create an integrated and intelligent interaction environment covering all scenarios. Accelerate the integration of AI with technologies such as the metaverse, low-altitude flight, additive manufacturing, and brain-computer interfaces, together with product innovation, and explore new forms of intelligent products.
4. “AI+” People’s Livelihoods and Well-Being
(1) Create more intelligent ways of working. Actively exploit AI’s role in creating new jobs and empowering traditional job positions, explore new organizational structures and management models for human-computer coordination, foster development of innovative work forms such as intelligent agents, and promote their application in positions subject to labor shortages and high-risk environments. Vigorously support AI skills training to stimulate the vitality of AI-based innovation, entrepreneurship, and reemployment. Strengthen the application of AI in employment risk assessment, and guide innovation resources toward areas with high job creation potential to mitigate employment impacts.
(2)Introduce more productive learning approaches. Integrate AI into all elements and processes of education and teaching, innovate new human-computer coordination teaching models such as smart learning partners and virtual teachers, promote a shift in the focus of education from knowledge transmission to capability improvement, and accelerate the achievement of large-scale teaching in line with students’ aptitude, so as to increase educational quality and encourage educational equity. Build intelligentized, scenario-based, and interactive learning models, and promote more flexible and resource-rich self-directed learning. Encourage everyone to actively learn new AI knowledge and skills.
(3) Create fulfilling lives with higher quality of life. Explore the promotion of high-quality health assistants accessible to all, and promote, in an orderly fashion, the application of AI to scenarios such as assisted diagnosis and treatment, health management, and health insurance services, thereby significantly enhancing basic medical and healthcare capabilities and efficiency. Push for AI to do more to enrich cultural production, enhance cultural dissemination, and promote cultural exchanges, and utilize AI assistance to create more cultural content with Chinese cultural elements and markers, so as to build up the cultural industry. Fully exploit AI’s important roles in weaving interpersonal relationships, providing emotional comfort and companionship, supporting elder care, childcare, and disability assistance, and fostering national fitness, expand the application of AI throughout the life cycle of “good houses,” and actively build a warmer smart society.
5. “AI+” Governance Capacity
(1) Create a new landscape of human-computer symbiosis in social governance. In an orderly fashion, promote the intelligentized renovation and upgrading of municipal government infrastructure, explore urban planning, construction, and governance oriented toward the development of new generation smart terminal devices, and increase the level of intelligentization of city operations. Accelerate the extension of AI products and services into rural areas, and promote inclusive access to AI across urban and rural areas. Carry out AI social experiments in depth. In a safe, steady, and orderly fashion, advance the application of AI in government affairs, create a new model of government services characterized by precise identification of requirements, proactive planning of services, and whole- process intelligent paperwork. Accelerate the application of AI in various public resource bidding and tendering activities, and raise the level of intelligent transaction services and supervision.
(2) Create a new pattern of diversified and collaborative safety and security governance. Promote the building of an integrated public safety and security governance system encompassing natural persons, digital humans, and intelligent robots; strengthen the application of AI in the areas of work safety supervision, disaster prevention and mitigation, public security early warning, and public security management; raise standards in work such as monitoring and early warning, regulatory enforcement, command and decision-making, on-site rescue, and mobilization of society; and enhance the ability to apply AI in maintaining and shaping national security. Accelerate promotion of AI-enabled cyberspace governance, and strengthen capabilities such as precise identification of information, proactive situation assessment, and real-time risk handling.
(3) Jointly paint a new tableau of ecological governance for a Beautiful China. Raise the levels of integrated air-space-ground-sea dynamic perception and smart national spatial planning, and strengthen the optimized allocation of resource factors of production. Centered on multi-element ecological environments (atmosphere, water, oceans, soils, and organisms) and national carbon market development, improve capabilities in AI-driven monitoring, prediction, simulation, and issue resolution, and promote construction of an intelligent collaboration-based model of precision governance.
6. “AI+” Global Cooperation
(1)Promote inclusive sharing of AI. Treat AI as an international public good that benefits humanity, and create an open ecosystem for AI capacity building characterized by equal rights, mutual trust, diversity, and win-win outcomes. Deepen high-level openness in AI fields, push for AI technologies to be open-source and accessible, strengthen international cooperation in computing power (“compute”), data, and talent, help Global South countries build up their AI capabilities, and facilitate the equitable participation of all countries in the intelligentization-based development process, so as to bridge the global AI divide.
(2) Jointly build a global AI governance system. Support the United Nations in fully playing its role as the primary channel for global AI governance, and explore the formation of a governance framework with broad international participation, in order to jointly address global challenges. Deepen exchanges and cooperation with international organizations and specialized agencies, and strengthen the alignment and coordination of governance norms and technical standards. Jointly assess and actively respond to AI application risks, ensuring that the development of AI is safe, reliable, and controllable.
III.Strengthening Basic Support Capabilities
7. Enhance the fundamental capabilities of models. Strengthen basic AI theoretical research, and support multi-path technology exploration and underlying model architecture innovation. Accelerate research on more efficient model training and inference methods, and actively promote the coordinated development of theoretical, technological, and engineering innovation. Explore new forms of model application, improve complex task processing capabilities, and optimize interactive experiences. Establish and improve model capability assessment systems to promote effective iterative enhancement of model capabilities.
8. Strengthen data supply innovation. Use an application-oriented approach to continuously strengthen construction of high-quality AI datasets. Refine data property rights and copyright systems adapted to AI development, and promote the lawful and fully compliant release of copyrighted content generated by publicly funded projects. Encourage exploration of methods such as value contribution-based data cost compensation and revenue sharing, and strengthen data supply incentives. Support the development of data labelling and synthetic data technologies, and incubate and grow data processing and data service industries.
9. Strengthen the coordination of intelligent compute. Support breakthrough innovation in AI chips and the cultivation of enabling software ecosystems, and accelerate breakthroughs and engineering execution in ultra-large-scale intelligent computing cluster technology. Optimize the national intelligent computing resource layout, refine the integrated national compute network, fully utilize the role of “East-West Computing Resource Transfer” national hubs, and increase the coordination of resources such as data, compute, electricity, and networks. Strengthen the interconnectivity and supply-demand matching of intelligent compute, innovate the operational models of intelligent compute infrastructure, encourage the development of standardized and scalable cloud-based compute services, and promote intelligent compute supply that is accessible to all, easy to use, cost-effective, environmentally friendly, and secure.
10. Optimize the application development environment. Lay out and construct a number of national AI Application Pilot-Scale Test Bases, and build common platforms for industry applications. Promote the intelligentization of software and information service enterprises, and the restructuring of product forms and service models. Incubate AI application service providers, develop “Model as a Service,” “Agent as a Service,” etc., and craft an AI application service chain. Improve AI application scenario development guidelines, evaluations of their level of openness, and incentive policies, and refine application trial-and-error and fault tolerance management systems. Strengthen intellectual property protection, conversion, and collaborative application. Accelerate AI standards development in key fields, and promote cross-industry, cross-sector, and internationalized coordination on standards.
11. Promote a thriving open-source ecosystem. Support the development of open-source AI communities, promote the gathering together and openness of models, tools, and datasets, and cultivate high-quality open-source projects. Establish and improve evaluation and incentive mechanisms for open-source AI contributions, and encourage universities to include open-source contributions in student course credit certification and faculty achievement recognition. Support enterprises, universities, and research institutions in exploring inclusive and efficient new models for open-source applications. Accelerate the building of an open-source technology system and community ecosystem that are open to the world, and develop internationally influential open-source projects and development tools.
12. Strengthen talent cadre construction. Promote AI education at all academic levels and promote general education throughout society, improve the structure of academic majors, intensify high-level talent development, use unconventional approaches to build new models for developing leading talents, strengthen faculty development, and promote industry-education integration, cross-disciplinary talent development, and international collaboration. Refine the diversified evaluation system in line with the professional attributes and job characteristics of AI talents, use the role of leading talents to better advantage, give young talents more room to maneuver, and encourage active exploration of AI’s “uncharted territories.” Support enterprises in properly utilizing medium- and long-term incentive mechanisms such as equity and stock options to attract, retain, and utilize talent.
13. Strengthen policy and regulatory assurance. Improve systems for the evaluation and risk management of state-owned capital investments in AI. Intensify financial and government fiscal support for AI fields, develop and build up long-term capital, patient capital, and strategic capital, refine risk-sharing and investment exit mechanisms, and give full play to the role of policies on government funding and procurement. Refine AI-related laws, regulations, and codes of ethics, and advance legislative work related to the healthy development of AI. Optimize AI-related security assessment and filing management systems.
14. Boost security capability levels. Promote the building of security capabilities for model algorithms, data resources, infrastructure, and application systems, prevent risks arising from black-box model effects, hallucinations, and algorithmic bias, strengthen mechanisms for forward-looking assessment, monitoring, and handling, and push for AI applications to be compliant, transparent, and trustworthy. Establish and improve AI technology monitoring, risk warning, and emergency response systems, strengthen government guidance and industry self- discipline, adhere to an inclusive and prudent approach with categorized and graded management, and accelerate the formation of a pattern of AI governance that is dynamic, agile, diverse, and collaborative.
IV. Organizing Implementation
Persist in implementing the Party’s leadership throughout the course of the “AI+” initiative. The National Development and Reform Commission shall strengthen overall coordination to promote the formation of work synergies. All regions and departments shall give careful consideration to actual conditions, tailor implementation to local conditions, and ensure effective execution and tangible results. Demonstration and leadership shall be strengthened, and best practices shall be summarized and more broadly adopted as appropriate. Propaganda and guidance shall be strengthened so as to build a broad and cohesive social consensus, creating a good atmosphere of collective participation throughout society.
State Council August 21, 2025
